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2 Commonwealth of Australia 2015 ISSN (Print) ISSN (Online) ISBN (Print) ISBN (Online) Except for the content in this document supplied by third parties, the Australian National Audit Office logo, the Commonwealth Coat of Arms, and any material protected by a trade mark, this document is licensed by the Australian National Audit Office for use under the terms of a Creative Commons Attribution NonCommercial NoDerivatives 3.0 Australia licence. To view a copy of this licence, visit nc nd/3.0/au/. You are free to copy and communicate the document in its current form for non commercial purposes, as long as you attribute the document to the Australian National Audit Office and abide by the other licence terms. You may not alter or adapt the work in any way. Permission to use material for which the copyright is owned by a third party must be sought from the relevant copyright owner. As far as practicable, such material will be clearly labelled. For terms of use of the Commonwealth Coat of Arms, visit the It s an Honour website at Requests and inquiries concerning reproduction and rights should be addressed to: Executive Director Corporate Management Branch Australian National Audit Office 19 National Circuit BARTON ACT 2600 Or via 2

3 Canberra ACT 19 May 2015 Dear Mr President Dear Madam Speaker The Australian National Audit Office has undertaken an independent performance audit in the Department of Human Services titled Management of Smart Centres Centrelink Telephone Services. The audit was conducted in accordance with the authority contained in the Auditor-General Act Pursuant to Senate Standing Order 166 relating to the presentation of documents when the Senate is not sitting, I present the report of this audit to the Parliament. Following its presentation and receipt, the report will be placed on the Australian National Audit Office s website Yours sincerely Ian McPhee The Honourable the President of the Senate The Honourable the Speaker of the House of Representatives Parliament House Canberra ACT 3

4 AUDITING FOR AUSTRALIA The Auditor General is head of the Australian National Audit Office (ANAO). The ANAO assists the Auditor General to carry out his duties under the Auditor General Act 1997 to undertake performance audits, financial statement audits and assurance reviews of Commonwealth public sector bodies and to provide independent reports and advice for the Parliament, the Australian Government and the community. The aim is to improve Commonwealth public sector administration and accountability. For further information contact: The Publications Manager Australian National Audit Office GPO Box 707 Canberra ACT 2601 Phone: (02) Fax: (02) ANAO audit reports and information about the ANAO are available on our website: Audit Team Linda Kendell Christine Preston Esther Ooi Megan Beven Donna Burton 4

11 Summary Introduction 1. In the Department of Human Services (Human Services) delivered $159.2 billion payments to customers and providers. 1 The department delivers these payments and related services on behalf of the Australian Government through a variety of channels 2 including telephone, on line, digital applications and face to face through some 400 service centres located across Australia. While there has recently been strong growth in digital channels and the department is actively encouraging the use of these self service channels, demand for telephone services remains strong. In , the department handled 59.5 million telephone calls about Centrelink, Child Support and Medicare services. 3 The majority of calls, 43.1 million annually or more than per week, related to Centrelink services. 2. Human Services manages over 50 Centrelink related telephony lines, each with its own 1800 or 13 telephone number. 4 Each of the main payment types such as the aged pension and employment services has its own line, and calls are managed and distributed nationally through a virtual network. Previously referred to as call centres, the department now provides telephone services through a network of 29 Smart Centres, with some $338 million expended on Centrelink telephone services in The department s shift to Smart Centres began in and is still being implemented. Previously, telephony and processing work were undertaken separately and were arranged by payment type. Smart Centres are intended to blend telephony and processing work and reorganise work around the complexity and frequency of customer transactions rather than by payment type, so as to improve customer service and allow staff to be deployed more flexibly. 1 Department of Human Services, Annual Report , p A channel is the access mechanism used by government to interact with customers and for customers to interact with government. The Australian Government Information Management Office (AGIMO) identifies the following channels: on-site, on-paper, on-call, on-line, on-air, on-the-go. AGIMO, Managing Multiple Channels, April 2006, p Department of Human Services, Annual Report , p Answer to Question on Notice HS 46, Senator Siewert, 24 January 2014, Senate Community Affairs Legislation Committee, Supplementary Estimates, 21 November

12 Audit objective, criteria and scope 4. The audit objective was to assess the effectiveness and efficiency of the Department of Human Servicesʹ (Human Services) management of Smart Centresʹ Centrelink telephone services. 5. To form a conclusion against the audit objective, the ANAO adopted the following high level criteria: Human Services offers customers effective telephone services in relation to a range of quality indicators, for example, wait times and the accuracy of the information provided; Centrelink call services in Smart Centres are managed efficiently; and Human Services effectively monitors and reports on the performance of Smart Centresʹ Centrelink telephone services. 6. The audit scope did not include an examination of Smart Centresʹ processing services other than the processing that is done as part of the telephone service; or Smart Centresʹ Medicare and Child Support telephone services. Overall conclusion 7. Telephone services provided by the Department of Human Services (Human Services) through Smart Centres 5 are an integral part of the Australian Government s delivery arrangements for welfare services and income support provided through the Centrelink program. In , the department handled 43.1 million telephone calls for Centrelink services an average of around calls per week at a cost of some $338 million. The large volume of calls handled by the department is unique in comparison with other Australian call centres in either the public or private sectors. 6 Many of the calls made by Centrelink customers are technically complex relating, for instance, to the application of various income and asset tests and may also involve support for customers with complex needs. 7 Since , the department s key 5 Centrelink Telephone services were previously provided by the department in traditional call centres but have shifted to a Smart Centre concept where telephony and processing work is being blended, and is distributed to staff according to the complexity and frequency of transactions rather than by payment type. 6 For example, the Australian Taxation Office handled 8.2 million calls in Customers with complex needs include those with a mental illness and those with a history of longterm disadvantage including lack of education, disability and other health issues. 12

13 Summary performance indicator (target KPI) for all telephone services to customers has been an average speed of answer of less than or equal to 16 minutes The department faces the challenge of managing significant call volumes for Centrelink services while also transitioning to revised service delivery arrangements, through Smart Centres and self service options. Smart Centres are undergoing a major reorganisation of work focused on achieving efficiencies and improved customer service by deploying staff more flexibly, introducing new technology and using a different system for distributing telephone calls. The department also has a long term strategy to move most customer transactions from a personal service basis (conducted by telephone or face to face) to a self managed basis (conducted mainly over the internet) so as to focus customer service staff and telephone support on more complex services and customers most in need. However, while this transition is underway (for instance, mobile app transactions increased from 8.6 million in to 36.1 million in ), it will take time for customer behaviour to change and to realise expected benefits. In the interim the telephone remains a significant channel for customers seeking access to Centrelink services and assistance with online service channels, as digital services can vary in their ease of use and reliability. 9. Overall, the Department of Human Services is making progress in its transition to revised delivery arrangements for Centrelink services through its Smart Centre and self service initiatives, while continuing to face challenges in managing a significant volume of telephone calls from Centrelink customers. The department is pursuing a number of useful reforms under its transformation program for Smart Centres including the reorganisation of work, the introduction of new telephony technology and a digital strategy 9 with the aim of improving overall efficiency and customer outcomes, including call wait times. Human Services has also established a soundly based quality assurance framework for Centrelink telephone services, which should be extended to all relevant staff to improve the overall level of assurance. While Human Services data indicates that the department has met its overall target 8 Average speed of answer is a measure of call wait time, that is, the amount of time a customer spends waiting before speaking to a Service Officer. Results against the KPI are aggregated for the Centrelink, Medicare and Child Support programs. 9 The department s draft digital strategy includes increasing the number of transactions able to be completed digitally by self-service and improving the reliability of the digital customer service channel. 13

14 for all customer telephone services in the last two years 10, the more detailed results for Centrelink telephone services show an increase in average speed of answer from well under 16 minutes in to over 16 minutes in From a customer perspective, the 16 minute average speed of answer target for Centrelink telephone services is much higher than targets recently set for other telephony services provided by the department 12 as well as those set by other large Australian call centres. Further, the current target does not provide a clear indication of the wait times Centrelink telephone customers can generally expect, due to the distribution of actual wait times around the average. Centrelink customers also continue to experience high levels of call blocking 13 and call abandonment 14, which can further impact on the customer experience. 10. When customers call a Smart Centre to access Centrelink services they can have a variety of experiences. Of the 56.8 million calls made to Centrelink 1800 or 13 telephone numbers in , 43.1 million calls were able to enter the network while 13.7 million calls were unable to enter the network, that is, the calls were blocked and the callers heard the busy signal. Of the 43 million calls in that were able to enter the network, around 45 per cent were answered by a Service Officer (SO) and around a quarter were resolved in the Interactive Voice Response (IVR) system. 15 The ANAO estimates that the remaining calls, around 30 per cent, were abandoned; that is the customer hung up without resolving the reason for their call. The 45 per cent of calls that resulted in access to a SO waited for an average of 16 minutes and 53 seconds prior to talking to a SO and callers who abandoned their call after entering the queue to talk to a SO waited an average of 9 minutes and 42 seconds before hanging up. Reflecting these access issues, call wait times have been the largest single cause of complaint regarding Centrelink services in each of the past 10 In , the average speed of answer for all customer telephone services (Centrelink, Medicare and Child Support) was 10 minutes and 2 seconds, and in it was 14 minutes and 26 seconds. 11 In , the average speed of answer for Centrelink telephone services was 12 minutes and 5 seconds, and in it was 16 minutes and 53 seconds. From 1 July 2014 to the end of December 2014, the average speed of answer was tracking at 15 minutes and 36 seconds. 12 For the Child Support program, the disaggregated target is less than or equal to three minutes ; and for the Medicare program, the disaggregated target is less than or equal to seven minutes. For the Centrelink program, the target remains less than or equal to 16 minutes. 13 A call is blocked when the caller hears a busy signal and cannot enter the telephone network. Blocked calls, while still relatively high, have fallen from 39.9 million calls in to 13.7 million calls in A call is abandoned when the caller hangs up after the call has entered the network. 15 The IVR system has recorded messages specific to each 13/1800 number and customers can also access self-service workflows via the IVR system. 14

15 Summary three years, with customer satisfaction with Centrelink telephone services falling to 66.6 per cent in from 70.4 per cent in Further, from the customer perspective, the department s target KPI relating to average speed of answer does not clearly indicate what service standard customers can expect, due to the distribution of actual wait times around the average. In , for example, for the top 10 Centrelink telephone lines 17, 36 per cent of customers waited less than 10 minutes while some 30 per cent waited for more than 30 minutes. 18 Other large customer service organisations, such as the Australian Taxation Office (ATO), express their call metric in a way that provides customers with more helpful information in this regard. By way of example, the target for the ATO s general enquiry line is 80 per cent of calls answered within five minutes 19, meaning that ATO customers can expect that most times their call will be answered within five minutes. 12. The department s overall target for all customer telephone services average speed of answer within 16 minutes has been agreed with government. From , the department will report separately on the performance of the Centrelink, Medicare and Child Support programs. While separate reporting is a positive development, there is no documented rationale as to why the revised targets set for average speed of answer for Medicare and Child Support services are significantly lower than the target for Centrelink services. Similarly, there is no clear reason why the department s quality assurance mechanism for telephone calls Quality Call Listening (QCL) is not applied to all staff handling calls, including staff with less experience who may therefore be at greater risk of making errors. To improve the level of assurance provided by QCL, the department should apply the framework to all relevant staff The department s customer satisfaction result is also significantly below the 2013 average customer satisfaction rate of 79.2 per cent in a global benchmarking report of call centres. Dimensions Data, 2013/14 Global Contact Centre Benchmarking Report, p The top ten Centrelink telephone lines are: Disability, Sickness and Carers; Employment Services; Families and Parenting; Indigenous; Older Australians; Youth and Students; two Income Management lines; Tip-off line; and Participation Solutions. 18 See Table 2.3 for data on Centrelink answered calls by time intervals. 19 The ATO s target KPI is applied only during the ATO s peak period of July to October. See ANAO, Audit Report No , Administration of Contact Centres, Australian Taxation Office. 20 The department advised that it is developing a new Quality Call Framework to ensure a consistent and whole-of-business approach to quality call management. 15

16 13. It is a matter for the Government and the department to set service standards taking into account the resources available, systems capability and longer term strategies to shift customers to self service. In this context, appropriate regard should be given to relevant industry benchmarks and the customer experience. The ongoing target for average speed of answer for Centrelink telephone services is very much at the upper end of the range of organisations and benchmarks examined. One consequence of high average wait times is that around 30 per cent of calls are abandoned by customers before the reason for the call is addressed. As mentioned, customer satisfaction with Centrelink telephone services is falling and access to call centres is the largest cause of customer complaints about Centrelink services. Community stakeholders interviewed by the ANAO for this audit also drew attention to problems for customers relating to lengthy call wait times. 21 Against this background, the department should review performance measures for Centrelink telephone services to clarify the service standards that customers can expect and to better reflect customers feedback and experience. 14. In a resource constrained environment, it is necessary to make choices about the allocation of limited resources. The department is pursuing a transformation program for service delivery, with a focus on realising efficiencies by transitioning customers to self service where possible, and reserving telephone services for more complex cases and those customers most in need. Nonetheless, while this transition is underway, in the short to medium term the telephone remains a key access channel for Centrelink services and a way of providing assistance to those experiencing difficulties using digital channels, as evidenced by the very large volume of calls handled. Consistent with international trends, Centrelink customers are often using Smart Centres as a help desk when accessing digital channels 22 and while it is not known, at this stage, whether this trend is likely to be transitional or ongoing, there is a need to appropriately manage the telephony channel so as to provide a 21 For instance, people with a disability often access telephone services with the assistance of a carer and in these circumstances both the person with the disability and the carer can experience lengthy wait times. 22 Dimension Data, 2013/14 Global Contact Centre Benchmarking Report, pp. 47, 78. During fieldwork, the ANAO observed the interaction between the telephone channel and the reliability and ease-of-use of the digital channels. At present, the department cannot estimate the proportion of calls stemming from issues with the digital channel, however, if call recording and voice analytics are enabled under the Managed Telecommunications Services contract such estimates should be possible. 16

17 Summary reasonable customer experience while also developing a viable pathway to the planned state. 15. The ANAO has made three recommendations focusing on: the implementation of a channel strategy to help deliver improved services across all customer service channels and a more coordinated approach to the management of call wait times; the application of the department s quality assurance mechanisms to all relevant staff in Smart Centres; and the review of target KPIs to better reflect the customer experience and to clarify the service standards that customers can expect. Key findings by chapter Managing Customer Wait Times (Chapter 2) 16. Wait times for Centrelink telephone services have increased significantly in recent years from an average of 3 minutes and 5 seconds in to an average of 16 minutes and 53 seconds in Key factors underlying the increase include: reductions in the number of staff answering telephones; the performance and reliability of other customer service channels; and the more limited use of call blocking from late in While Human Services wishes to reduce the demand for telephone services by encouraging customers to use selfservice channels, difficulties with using digital channels can lead to customers making telephone calls to seek assistance with online transactions. Comparisons with other large customer service organisations that deliver telephone services indicate that the department s average wait times for Centrelink telephone services are very much at the upper end of contemporary service delivery standards. 23 Average wait times for Centrelink telephone services are also significantly above the separate targets recently set for the department s Medicare and Child Support telephone services. 24 Further, Centrelink customers continue to experience call blocking and call abandonment. 23 For example, the Department of Immigration and Border Protection has a target of 80 per cent of calls within 10 minutes and Qantas has a target of all calls answered within three minutes. See Table 2.4 for a comparison of waiting time targets for a selection of other large customer service organisations. 24 In its Portfolio Budget Statements the department indicated that it would, in future, report against disaggregated targets for its average speed of answer KPI for its three key programs. For the Child Support program, the disaggregated target is less than or equal to three minutes ; and for the Medicare program, the disaggregated target is less than or equal to seven minutes. For the Centrelink program, the target remains less than or equal to 16 minutes. 17

18 17. Customer satisfaction with Centrelink telephone services is falling, access to call centres is the largest cause of customer complaints about Centrelink services, and community stakeholders interviewed by the ANAO, as well as a 2014 Commonwealth Ombudsman s report, drew attention to problems for customers relating to lengthy call wait times. For instance, Indigenous people in remote communities who may share the one telephone available in an Indigenous Agent s premises sometimes take more than one day to access telephone services. In these circumstances, people may need to queue to use the telephone and may miss out if others calls are lengthy, as the Agent s premises may only be open for a limited time each day. 18. In , when call wait times began to increase significantly, the department responded by establishing a Call Improvement Taskforce (CIT). While the CIT did not operate within an overarching channel strategy it did have a useful five point strategy, providing a coordinating framework for its activities. Since the CIT was wound up in 2013, the department has pursued a range of initiatives to reduce wait times, and recently advised that work was underway to scope the development of a channel strategy, consistent with sound practice 25, to help coordinate these initiatives within the context of the department s transformation program for service delivery. 26 Managing Quality and Efficiency (Chapter 3) 19. A sound quality control framework can help provide assurance that Smart Centres deliver consistently high quality Centrelink telephone services. Further, the more efficiently such services can be delivered, within available resourcing, the greater the potential for improving productivity and/or reducing costs. 20. The department has two quality assurance frameworks in place to measure the accuracy and quality of its Centrelink telephony services: Quality On Line (QOL) and Quality Call Listening (QCL), both of which are underpinned by check the checkers processes. The QOL framework is 25 The Australian Government Information Management Office (AGIMO) has emphasised the importance of entities establishing a channel strategy to manage service delivery to their clients through the most appropriate channels. AGIMO, Managing Multiple Channels, April 2006, p. 6. The recent ANAO report of the administration of the Australian Taxation Office s contact centres recommended that the ATO develop a channel strategy ANAO Report No.7, , Administration of Contact Centres, Australian Taxation Office, p As mentioned earlier, the department aims to transition customers to self-service where possible, and reserve telephone services for more complex cases and those customers most in need. 18

19 Summary soundly based and results for Smart Centres have been good with the target correctness rate of 95 per cent generally being met. 21. While the department has a well established QCL framework for measuring and monitoring the quality of SOs customer interactions, which formally applies to all staff answering telephones, there are a number of gaps in the QCL framework s implementation. Intermittent and Irregular employees (IIEs) who will generally have relatively lower levels of experience and may therefore be at greater risk of making errors are not currently included in QCL processes in Smart Centres. 22. The number of calls per SO required to be monitored in the QCL framework falls within the range of other call centres examined by the ANAO. However, the implementation of the required four calls per experienced SO and eight calls per new SO is low. Participation rates in calibration exercises for QCL evaluators are also relatively low. To maintain the integrity of the Quality Call Listening (QCL) process, the department should review the potential impact of these gaps in the implementation of QCL. 23. A number of measures have been used at various times to help the department assess the efficiency of Centrelink telephone services, including Average Handle Time 27 and First Call/Contact Resolution. 28 In recent years, the department s Average Handle Time for Centrelink telephone services and First Contact Resolution have been broadly within the range experienced by other call centres. For instance, in the Average Handle Time for Centrelink telephone services was 8 minutes and 20 seconds compared to 9 minutes and 32 seconds for the education and government sector of a global survey of call centres. 29 However, the department s performance against both Average Handle Time and First Contact Resolution declined in relative to the previous year. 30 While transitional issues associated with the implementation 27 Average Handle Time (AHT) measures the average time a SO engages with a customer on the telephone (including any hold time) plus the average time spent on after-call work such as entering data or completing forms. AHT is routinely included in departmental performance reports. 28 First Contact Resolution is a situation where an issue can be resolved by the first SO taking the call. If a call does need to be transferred, the goal becomes First Call Resolution, that is, a situation where the customer s issue is resolved by the time the customer ends the call. First Contact Resolution is measured by the proxy indicator of the percentage of answered calls that are transferred to another SO. This proxy indicator is not routinely included in departmental performance reports. (Proxy measures are indirect indicators of performance in the area being examined.) 29 Dimensions Data, 2013/14 Global Contact Centre Benchmarking Report, p See Tables 3.7 and 3.8 for time series data on Average Handle Times and First Call/Contact Resolution. 19

20 of Smart Centres appear to have contributed to these declines in performance, continued analysis by the department of its performance against these key efficiency measures would help confirm the factors behind these trends. Analysis would also assist in evaluating delivery of the expected benefits from Smart Centres, new technology capabilities, and structural changes to the department s telephony workforce. Performance Measurement, Monitoring and Reporting (Chapter 4) 24. The department internally monitors the performance of Smart Centres against a range of useful, albeit traditional call centre metrics. A number of internal targets have also been established. While these metrics are an aid to assessing performance information at an operational level, they provide a more limited basis for assessing customer outcomes and the success or otherwise of the Smart Centre concept. There would be value in examining existing metrics and their fitness for purpose in the Smart Centre environment. In particular, the department could usefully focus on: First Call/Contact resolution as improving resolution rates is a key goal of the Smart Centre concept; the IVR system to assess its effectiveness in resolving calls without having to speak to a SO; and the interpretation of Average Handle Time which has changed following the blending of telephony and processing work. 25. Human Services currently uses the average speed of answer as the single KPI for its public reporting on telephony services. 31 This target KPI is both relevant and reliable for its intended purpose, as it addresses a significant aspect of the department s telephone services and can be quantified and tracked over time. However, it is not complete as it does not provide insight into the range of customer telephony experiences, including the service levels that most customers can expect and the incidences of call blocking and abandoned calls. 31 The target for average speed of answer is less than or equal to 16 minutes. 20

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